EFFECTIVE GOVERNANCE IN THE CHANGING POLITICAL LANDSCAPE OF LABRADOR
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MEMORIAL PRESENTS
EFFECTIVE GOVERNANCE
IN THE CHANGING POLITICAL
LANDSCAPE OF LABRADOR
BY DR. LAWRENCE FELT AND DR. DAVID C. NATCHER
During the last twenty years, citizens in most Western democratic societies have
voiced increasing frustration with their perceived detachment from the governments
they ostensibly elect. This experience resonates with many Labradorians, Aboriginal
and non-Aboriginal alike. Governed within one of the most hierarchical and
centralized polities in the Western world, Labrador’s experience with government has
historically been one of benign neglect and financial appropriation (Noel 1971;
Cohen 1972; Felt, forthcoming). But times in Labrador are showing signs of change.
C
itizen demand, large mineral discoveries Aboriginal peoples have also altered Labrador’s
with the expectation of more to come, political landscape. The Labrador Inuit land
higher levels of education among citizenry, claims agreement signed in 2005 resulted in the
the negotiation and settlement of Aboriginal land formation of the Nunatsiavut Government and is
claims, and new philosophies of government, now heralded worldwide as an example of
born largely from the fiscal crises of the late 20th indigenous political empowerment. The Innu
century, are leading to more participatory forms Nation is also well advanced in its own land
of government. The general result has been a claims negotiations and expects a final agreement
more responsive electorate that governs through to be in place in the coming years. Recently, the
consultation and collaborative processes. While Supreme Court of Canada recognized the
one should be cautious not to overstate the extent Aboriginal rights of the Labrador Métis Nation
of governmental democratization, the process of (LMN) and has required the Provincial
governing in Labrador has never been more Government of Newfoundland and Labrador to
promising or complex. enter into meaningful consultation with the LMN
From 1998 to 2005, the Strategic Social Plan over the proposed hydro-electric development of
(SSP) provided an arms-length institutional form the Lower Churchill River.
to involve citizens in the development and While it is arguably the case that the formal
implementation of social policy relevant to their relations between the federal, provincial,
unique circumstances. Regional Economic municipal, and Aboriginal governments in
Development Boards (REDBs), Development Labrador have undergone positive change, it is
Corporations, municipal federations like the also true that the legacies of centralized
Combined Councils, and a host of other largely government remain ever present and deeply
voluntary organizations have arisen in Labrador embedded in Labrador’s local and municipal
as vehicles for channeling local views. While the affairs. For Aboriginal peoples who see
results appear mixed (Felt and Rowe 2008), some comprehensive land claims as a means of
important successes in terms of political implementing new forms of government that are
representation have nonetheless been achieved. consistent with their own culture and institutions
Territorial and status claims made by Labrador’s for decision-making, the entrenchment of the
32 VOLUME 101 NUMBER 1 2008federal system may prove limiting ...will decisions and organizations external to
in the extent to which Aboriginal government play in influencing
governments are empowered to be ‘home grown’ conflict mediation, societal
propose and implement real and reflective of objectives, resultant policies, and
change. This political complexity, how government initiatives are
with a large number of political local interests or carried out in an era of New Public
actors, some local and others more imposed by distant Management (NPM) in which
distant, raises a number of formal governments shrink and
important questions. For example, political centres increasingly devolve program
how will the most critical decisions with differing and implementation to non-
affecting Labrador’s future be made governmental bodies (Bovaird and
– will decisions be ‘home grown’ perhaps diverging Loffler 2001). Robert Putnam
and reflective of local interests or (2001) and Michael Woolcock
imposed by distant political centres
interests? (2001) have used the term ‘social
with differing and perhaps capital’ to capture the role of
diverging interests? Given constitutional decisions interpersonal relationships within this larger issue
regarding Aboriginal land claims and the of governance. Governance therefore represents
formation of bi-lateral and ‘Nation-to-Nation’ the broader social fabric of organizations and
political processes, what opportunities exist for sentiment necessary for more expansive
Aboriginal governments to become truly self- participation in decision-making, within the
governing? While a brief paper like this does not constitutional limits established by law.
allow for a comprehensive review of these Government and governance should thus be seen
questions, we do attempt to shed light on some of as interdependent and reinforcing, as illustrated
the more salient factors that may influence future in Figure 1.
governance in Labrador. We also try to identify As governance in Labrador becomes
possible trajectories and potential pit-falls that increasingly decentralized, we must also be
may challenge emergent political processes mindful that securing the right to govern requires
between Aboriginal and non-Aboriginal peoples. the ability to govern and perhaps no other factor
Before delving into these issues, it is important to is more critical to effective local governance as is
first clarify the distinction between ‘government’ fiscal autonomy. While decentralization requires a
and ‘governance’. genuine transfer of administrative responsibility,
Much of what we call government, in fact, now the reliability of financial support is equally
occurs outside of it. Political scientists have critical to successful governance (Natcher and
coined the term governance to capture this wider Davis 2007). This will no doubt prove true in
process. Unlike government - formal Labrador as Aboriginal and non-Aboriginal
organizations defined by legislation such as governments face many new and demanding
Parliament and the Houses of Assembly - challenges in the years to come. The challenge of
governance is more encompassing. It denotes a securing the necessary financial resources to
larger process and systems through which govern effectively is common among the 60 or
societies and organizations, formally more countries throughout the world that are
governmental as well as non-governmental, make currently devolving governing authority to
important decisions, determine whom they regional or local levels (Colfer and Capistrano
involve in the process, and how they ensure 2005). In most cases, the transfer of governing
accountability for the decisions they make authority has not been accompanied by the
(Bowles and Gintis 2002). In a general sense, appropriate financial resources to govern
governance is a web of organizations and effectively (Enters et al. 2000). By failing to
relationships, formal and informal, through which allocate sufficient resources, tension between
people establish priorities, mediate conflict, and levels of government often builds, with local
build a common future. Governance also reflects authorities finding themselves in “financial strait
the increasingly important role that individuals jackets” when it comes to policy implementation
NEWFOUNDLAND QUARTERLY 33Figure 1. Government and Governance in Labrador.
Unions,
Professional
Associations
Health Education
Boards Boards
REB’s,
NGO’s Governance CDC’s, etc
Aboriginal Canadian Provincial Municipal
Governments Government Government Government
and administration (Prince and Abele 2002: 2). In relationships with other governments. Thus the
cases where financial resources are made ability to carry out self-governing responsibilities
available, the high degree of conditionality requires significant and secure financial resources.
attached to funding often limits the ability of local Yet, being financially dependent on other levels of
governments to implement alternatives to existing government, be they provincial or federal, all too
government programs, thereby perpetuating the often redirects accountability away from
interests of others in distant centres (Natcher and Aboriginal governments and their citizens to
Davis 2007). The result is a system of governance Aboriginal governments and the agencies they are
that flows from the top down with local financially beholden to. This form of dependency
constituents further removed from decision- then limits the extent to which Aboriginal
making processes. governments can engage other levels of
For Aboriginal governments, this form of government on policy issues that affect Aboriginal
dependency is particularly limiting. Jorgensen interests (Cornell and Kalt, 2007). Lacking the
(2007) defines Aboriginal self-government as not financial independence to implement self-defined
only an assertion of rights and responsibilities change, Aboriginal governments may find little
over lands and people within their borders, but opportunity to exercise authority beyond self-
having the capacity to manage service delivery, administering existing government programs and
develop and pursue long-term strategies for services. This may occur at the expense of
community development, and negotiate new designing their own development strategies and
34 VOLUME 101 NUMBER 1 2008concentrating on pressing civil affairs. While self- must also prepare for heightened responsibility.
administration may be an acceptable interim This will include looking inward and making
measure for some Aboriginal governments as they strategic municipal reforms (Felt, forthcoming).
develop internal capacity, if allowed to perpetuate, Labrador’s Aboriginal governments, who are
self-administration may remove the opportunity pursuing their own political agendas, will need to
for Aboriginal governments to implement new coordinate with other levels of government,
forms of government that are reflective of including municipal and regional governments, in
Aboriginal values and institutions. Thus, by order to identify and implement effective
adopting and administering the same programs mechanisms for inter-governmental relations and
and institutions that were in place prior to legislative coordination. If successful,
securing self-governing authority, Aboriginal governmental reform will allow all Labradorians
governments may run the risk of perpetuating to work together to resolve, or at least manage,
colonial legacies that have long dictated issues of common concern. These reforms can
Aboriginal affairs. also facilitate more effective communication and
Aboriginal governments in Labrador are well cooperation between levels of government and
aware that change will not occur overnight or by create conditions for diachronic change that can
simple prescription. Because Aboriginal systems result in mutual learning, respect, and trust over
of governance have to a large extent been time. Down the road, these reforms will be critical
undermined by centuries of colonial to the future of Labrador and its system of
administration, many elements unique to governance. Success, by all significant indicators,
Aboriginal cultures have been weakened and in will be measured over the long-term and will be
some cases lost over time. As such, one cannot dependent on the level of commitment shown by
expect traditional Aboriginal institutions of all levels of government as well as the shared
governance to resurface automatically in the wake sense of responsibility among all who call
of government withdrawal, or, as the colonial Labrador home. Simply stated, no one
experience has shown, to be imposed from above government, group or individual can afford to
(Natcher and Davis 2007). Rather, success will be a spectator during this period of change. In
depend on the rebuilding of trust in Aboriginal the end, all Labradorians will need to come
authority and generating and sustaining effective together if effective governance develops in
forms of inter-governmental relations with ‘The Big Land.’
neighboring Aboriginal and non-Aboriginal
Dr. Lawrence Felt is a Professor with the Department of
governments. Sociology at Memorial University, and Dr. David C. Natcher
It is important to emphasize that effective works with the College of Agriculture and Bioresources at the
governance is neither automatic nor problem-free. University of Saskatchewan.
Rather, it is shaped by the traditions, cultures and
2 This paper is based on a presentation and panel discussion
the social locations of all parties. Where differing sponsored by the Harris Centre of Memorial University on May
political cultures coexist, and participatory 13, 2008, in Happy Valley/Goose Bay, Labrador. We would like
traditions of government nascent, such as to thank Robert Greenwood and Mike Clair from the Harris
Centre for extending the invitation to participate as well as
Labrador, even those sharing the same general Ernie McLean of the Central Labrador Economic Development
geographical boundaries may have to pursue very Board and Peter Penashue of the Innu Nation who also
participated on the panel and whose insightful and informed
different paths to governance. The federal and comments contributed to the writing of this paper.
provincial governments, who have long treated
communities and municipalities as little more References
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(Natcher et al. 2004). In this era of New Public Continued on page 42...
Management, Labrador’s municipal governments
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Berni Stapleton is an actor, playwright and Artistic
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